Journal of Marine Science and Technology, Vol. 27, No. 5, pp. 427-434 (2019) 427 DOI: 10.6119/JMST.201910_27(5).0005

PERCEPTIONS OF OFFSHORE WIND FARMS AND COMMUNITY DEVELOPMENT: CASE STUDY OF , CHUNGHUA ,

Ku-Jung Lin1,2, Chia-Pao Hsu1, and Hung-Yu Liu1

Key words: Offshore Wind Farms (OWF), green energy develop- of Fangyuan for providing community benefits by reviving the ment, community engagement, stakeholder empower- local culture and encouraging tourism based on both tradi- ment, traditional industries, community-based tourism tional activities and OWF appeared to be received favorably by all involved.

ABSTRACT I. INTRODUCTION Surrounded by the ocean, Taiwan has many rich marine A search for new sources of clean energy to mitigate the cultural resources that have benefited its coastal communities prospect of climate changes is now underway. The power grid and led to the development of diverse traditional marine in- is undergoing a transformation as countries across the globe dustries. A typical example is the unique tradition of “Sea seek to achieve zero emissions for power systems before the Buffalos Working in the Oyster Field”, which has been prac- year 2050 (IPCC, 2018). Owing to uncertainty in the global ticed for over a century in Fangyuan Township of power market, and also due to changes in the renewable en- County. The cultural landscape of buffalos and workers cul- ergy policies of various nations, the detailed outlook for the tivating oyster fields has been recognized as a precious cul- wind power industry is unpredictable; however, wind power tural heritage by both local and international parties. However, will certainly play a significant role in energy systems in the Fangyuan Township is facing a turning point due to the in- future. Taiwan is a country that relies upon imported energy stallation of offshore wind turbines. Development-promoting for as much as 98% of its power supply (Bureau of Energy, public agencies and the private sectors are both in need of a Ministry of Economic Affairs [henceforth BOE], 2019). Faced new vision of communities in which a viable combination of with such a high reliance on fossil fuels and with doubts about new, green-energy-based industries and traditional, cul- the safety of nuclear power plants and ways to dispose of ture-based industries is allowed to take shape. With that in nuclear waste, public opinion in Taiwan is shifting towards the mind, we reviewed several other localities’ experience of goal of a low-carbon and nuclear-free home land in the next green-energy development and its effect on the community. few decades (Taiwan Research Institute, 2019). In light of the We also analyzed how traditional cultural properties have been shortage of self-produced energy and the island’s great de- incorporated into the tourism industry in Fangyuan Township pendence on imported energy, as well as the “Greenhouse Gas while also investigating the potential impact of the develop- Reduction and Management Act” promulgated in 2015 (Laws ment of offshore wind farms (OWF) on traditional oyster and Regulations Database of ROC, 2019) and the Paris cultivation there. A series of interviews and meetings with key Agreement reached in UNFCCC COP21 (UNFCCC, 2019), stakeholders were held to examine, from different points of Taiwan is bound to follow a path of energy transition and must view, the benefits offered to the community by OWF devel- seize this opportunity for green growth. Among the potential opers and governmental decision-makers. Our normative case sources of renewable energy, offshore wind energy is probably one of the most practical ones for this island, with an estimated capacity of at least 6-10GW in the Taiwan Strait (Lai et al., Paper submitted 06/26/19; revised 07/10/19; accepted 07/22/19. Author for 2012). Offshore wind power thus offers Taiwan a fine oppor- correspondence: Ku-Jung Lin (e-mail: [email protected]) 1 tunity to increase the proportion of renewable energy in its Institute of Oceanic Culture, National Taiwan Ocean University, Kee- power supply. Establishing offshore wind farms (OWF) would lung202, Taiwan, R.O.C. 2Bachelor Degree Program in Oceanic Tourism Management, National also encourage localization of the power supply chain.. Taiwan Ocean University, Keelung202, Taiwan, R.O.C. When BOE (2015) issued its “Directions of Zone Appli-

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cation for Planning of OWF”, 36 “Zones of Potential” (ZAP) and represent a strong cultural-heritage value for the area's were specified and offered to wind power developers either by population. Fangyuan Township also attracts tourists owing to application or by auction. On 30 April 2018, 7 applicants were its abundance of marine cultural properties. Here we present awarded sufficient grid capacity to commission 10 OWF the steps taken so far to implement community engagement in (BOE, 2018a). Then, at the auction completed on 22 June Fangyuan and to inspire new sea-based small businesses to 2018, 2 companies were commissioned to first complete 4 benefit the community as the marine fisheries there are im- pilot projects and then provide a total of 1,664MW by 2025 paired. We also discuss the likely future of culturally valued (BOE, 2018b). In all, 2 domestic and 5 foreign investors have traditional practices like the “Fangyuan Sea Buffalos” (Lin, begun to work in the Taiwan Strait. Geographically, Changhua 2015; Pan, 2017). County including Fangyuan exceeded all other jurisdictions, Our working assumption has been that community benefits with a promised output of 2,400MW that represents 62.6% of linked to OWF can provide a means of smoothing the way for the total envisioned new wind-power capacity. community approval of the installation process (Lin et al., in The Energy Policy Bridging and Communication Division prep.), and so we also report on and try to rationalize the rather (EPBCD) of the National Energy Program-Phase II (NEP-II) high degree of ambivalence we found among the townsfolk was established within MOST (Ministry of Science and with respect to the development-based benefits on offer. There Technology) in 2014 to bridge and foster communications, as are different opinions, based on different public-policy well as alleviate conflicts among the BEO, developers, the viewpoints, as to why and whether wind farms need to be local public, politicians, and communities about renewable installed off Fangyuan. A platform for negotiation is required energy issues (NEP II, 2014). Such problems commonly arise for stakeholders and OWF developers to arrive at a mutual from the pursuit of controversial projects such as the devel- understanding of the irrespective viewpoints. As we had hoped, opment of offshore wind power, but EPBCD has encouraged the stakeholders and developers and local government were meaningful public engagement and partnership during both able to come together to devote themselves to the common the decision-making phase and project implementation. With goal of regional prosperity. The developers also recognized the respect to the development of communities and offshore wind importance of planning and developing of industries based on power, it engages local stakeholders, OWF developers, engi- local cultural properties, some ideas for which are described neers, central and local agency decision-makers, and others, below. encouraging them to learn from each other and to carefully consider the trade-offs involved in developing OWF. In this II. METHODS AND DATA COLLECTION paper, which summarizes the authors’ activities on behalf of EPBCD, we try to show how community engagement and As one facet of EPBCD’s NEP-II project starting in 2014, benefit sharing can be integrated to offer community support we worked for more than 5 years in to despite the initially conflicting viewpoints of those involved. investigate how to facilitate discussions among Fangyuan Community engagement refers to the processes through which Township’s stakeholders with respect to renewable energy a developer interacts with the community to guide the devel- development, the tourism landscape, wetland conservation, opment of a project. It is a general term used to refer to many and cultural properties. The most important goal was to em- activities including communications, consultation, participa- power stakeholders to become participants and practitioners in tion, and co-development (e.g., Cass et al. 2010; Lane and Fangyuan’s community development. The provision of Hicks, 2017). Although use of the term has become com- community benefits is of great importance for offshore wind monplace, its implementation in practice has been haphazard, project development and approval in Taiwan. How to achieve with varying degrees of commitment to genuine community this in ways acceptable to the many different stakeholders is a participation in directing the process and outcomes of devel- big challenge. In the present study, on behalf of EPBCD, we opment. There is no single best way to do community en- first reviewed the history and prospectus for OWF develop- gagement, and no one-size-fits-all approach, but several key ment off Fangyuan and in nearby regions, as well as the known factors in its successful implementation in other environmental impacts of offshore power installations, which wind-farm-developing countries have been noted (Lane and can involve noise, visual intrusion on the natural landscape, Hicks, 2017). impingements on local cultural heritage and fishing rights, and The present study was conducted in the Fangyuan coastal so on. We also reviewed how cultural attributes and tourism region, where 5 OWF developers are planning to construct 10 have been affected by or have accommodated themselves to OWF. Fangyuan Township is located in the southwestern OWF in various places around the world. coastal area of Taiwan and consists of 26 villages with a total Lane and Hicks (2017) indicated that successful commu- population of approximately 36,000 people. The main eco- nity engagement with respect to large-scale infrastructure nomic activities include commercial fishing centered at development projects depends on several key factors, and we Wangkung Harbor and agriculture, with the former particu- reviewed the steps taken so far by OWF developers and rele- larly important because of its dominant role in the township’s vant government sectors to see how well these factors have history and economy. Oysters are a main commercial species been addressed:

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Table 1. Meetings and workshops held in this work. Date Place Title Fangyuan Township, Changhua 2015.06.30 2015 Energy Development and Sustainable Community Forum County Fangyuan Township, Changhua 2015.08.30 2015 Renewable Energy Development and Marine Culture Education Camp County Fangyuan Township, Changhua 2015.12.31 2015 Outlook for Development of Cultural Tourism in Fangyuan Township Forum County Chunghua Fishery Association, 2016 Sea Buffalo and Sustainable Community Forum: Cultural Properties and 216.08.29 Changhua County Tourism Development in Fangyuan Township Fangyuan Township, Changhua 2016 Rethinking OWF and Coastal Communities’ Development Forum: Experi- 2016.12.15 County ence of Returning Youth 2016 The 2nd Conference on OWF and Fishing Communication Platform: Reg- National Taiwan Ocean Univer- 2016.12.16 ulations on OWF sity, Development Assistance Fund Changhua Fishery Association, 2017 Fangyuan Communities Sharing Platform of Information and Knowledge of 2017.03.30 Changhua County Renewable Energy Series I: Era of Green, Sharing of Green and Win-win Situation Changhua Fishery Association, 2017 Fangyuan Communities Sharing Platform of Information and Knowledge of 2017.10.23 Changhua County Renewable Energy Series II: OWF Installation vs. Local Eco-system 2017 Fangyuan Communities Sharing Platform of Information and Knowledge of Changhua Fishery Association, 2017.11.04 Renewable Energy Series III: Local Culture, Environment and Green Energy Changhua County Education Wangkung Oyster Art Associa- 2018 Wind of Fangyuan: Green Energy and Local Curriculum Demonstrative 2018.08.16 tion Teaching Seminar

• starting engagement early in the development process For specific data on stakeholders’ viewpoints at Fangyuan, • integrating the development with local landscape values we held a series of semi-structured interviews, symposia, and local identity (tailoring to local context) workshops, and experience camps. Semi-structured interviews completing a social feasibility analysis were conducted with different stakeholders including devel- • community (especially local) participation in deci- opers, members of the local public, non-governmental organ- sion-making and design (fair process) izations (NGO), politicians, local fishermen, educators, local sharing the benefits from the development in an equitable government officials, and consultants. Recordings, transcripts, way (fair outcomes) minutes, questionnaires, etc. obtained at 10 symposia, work- • building trust and relationships between stakeholders shops, and experience camps that we convened in Fangyuan • regular and face-to-face engagement (once in Keelung) over the courses of the 5 years provided • prioritizing an accessible complaints management pro- additional valuable information as shown in Table 1. cess • managing community engagement for legacy projects III. RESULTS AND DISCUSSION The issue of community engagement is distinct from that of the above-mentioned community benefits, such as payments 1. Impact of OWF on the Community and Community to the community from developers, local people’s ownership Acceptance and Participation in OWF of shares in the OWF, and the hiring of local people and local 1-1. Community Engagement contractors. Community engagement was our major focus, as Through semi-structured interviews, seminars, and work- we mainly sought suggestions for reviving locally celebrated shops arranged by the present authors, OWF developers and cultural properties with tourism potential, which could provide local stakeholders were jointly able to construct a vision of a realistic set of benefits. That is, we tried to use Fangyuan as a Fangyuan’s future development. Discussions of the impact of case study of changing perceptions of OWF and community OWF installation and the feasibility of modifying Fangyuan’s development, changes that depended on ancillary goals such cultural tourism industry also took place. as the revival of local cultural properties and transformation of For example, in a seminar held on 31 December 2015 (Lin traditional fishing. We tried to help the key stakeholders in et al., in prep.), participants representing key stakeholders such matters to present their requirements to OWF developers (similar to those listed below) addressed the future direction of and relevant government agencies. community development, the importance of environmental

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protection, the decrease in the local population, and the "Offshore Wind Potential Zones Installed Capacity Allo- challenges of maintaining a balance among the economy, cation" competition described above must allocate 3% of environmental protection, and the preservation of traditional the assistance fund to investment in environmental and cultural values. The participants also reached a consensus social responsibility affairs (BOE, 2015). However, such about developing cultural-educational tours to present the statutes are not common, and only a few authorities have “Fangyuan Sea Buffalo” as a distinct cultural attribute of the imposed regulations that amount to material considera- township, and about incorporating wetland conservation, tions in the planning process. For example, in the United agriculture, and fishery traditions into new types of tourism. States a particular scheme in Massachusetts legally obliges As another example (Lin et al., in prep.), a workshop held at a wind farm developer to provide community benefits the Fangyuan Fishery Association in 2016 specifically fo- (Klain and Battista, 2015; Vineyard Wind, 2019). In cused on cultural tourism, because “Sea Buffalos Working in Denmark, regulations state that at least 20% of the own- the Oyster Field” had recently been listed as a cultural her- ership of an OWF should be offered to local communities itage by Changhua County Government. Directors and other and adjacent municipalities (Green Economy Coalition, officials of Changhua County’s Cultural Affairs Bureau, 2017). In Scotland, there is no legal obligation for devel- Department of City and Tourism, Department of Agriculture, opers to offer community benefits, but the Highland Department of Economic Affairs, the Changhua Fisheries Council has introduced the most advanced community Association, Fangyuan Township Municipality, and the local policy anywhere, which guides voluntarily contributions aquaculture industry, as well as lawmakers, county council from developers and also regulates the distribution of members, and representatives of the “Sea Buffalo” cultural benefit payments from offshore renewable (Highland tourism industry, were all in attendance. Stakeholders ex- Council, 2013). changed views and opinions on the County Mayor’s vision for 3) Demand from communities. Explicit requests for com- promoting green energy and culture, and discussed other munity benefits can emerge as a direct response from community’s experiences with renewable energy. In addition, communities demanding involvement in the harvesting of participants were invited to witness the Fangyuan Sea Buffa- offshore renewables and the distribution of the resultant los and the oyster fields first-hand, thereby allowing execu- benefits. If there is a mismatch between the local costs of tives and local citizens to share informed opinions and make OWF (e.g., perceived, potential, or likely impact on scenic better decisions about cultural tourism and the wetland eco- views, the local environment, preexisting activities like system (Lin and Hsu, 2017). fishing, and anticipated future uses) and their regional or 1-2. Community Benefits global benefits (e.g., decreased carbon emissions, diversi- Consideration of community benefits derived from offshore fied electricity sources), sharing the benefits of a project renewables is a relatively new idea anywhere in the world can enhance the social and economic outcomes for the (Rudolph et al., 2014). It is important to allocate appropriate local community and build further support for the project community benefits for people who live near or are potentially (Klain et al., 2017). Governments, developers, and com- most likely to be impacted by development. Such benefits munities often display different, and at times conflicting, must not be confused with or be referred to as compensation understandings of community, benefit, and impact. Cor- measures or rewards, such as might be enforced legally to respondingly, benefits are often delivered in different ways, mitigate losses for or impacts on relevant third parties, such as depending on which set of definitions is being drawn upon. fishers or environmental organizations, caused by offshore They may be focused solely on a particular local commu- development. Nor are they in any way to be regarded as bribes nity or organization, or delivered more widely. As for for consent. Rather, community benefits can build local sup- Fangyuan, among the OWF developers working in Taiwan, port for a project if they are perceived as a means of creating Copenhagen Infrastructure Partners (CIP) has established greater equity (Aitken et al., 2014: 68). They may be offered an NTD 230 million (US$ 7.6 million) community fund for a number of reasons (Rudolph et al., 2014): for the benefit of local communities (CIP, 2018). Each year, 1) Voluntarism by developers as good practice of community NTD 3.3 million is to be awarded to support charitable, engagement. Community benefit schemes from offshore educational, cultural, and environmental activities in the renewables were first introduced by some developers in community. Another developer, Ørsted, has signed a con- the UK for Round 1 offshore wind farm projects in 2001 in tract with a university in the community to support the order to replicate the positive experiences from onshore development of a highly skilled workforce by providing wind farms. Since there were no regulations, community training opportunities during the construction, operation, benefit packages were arranged on a voluntary basis be- and maintenance phases of the project (Ørsted, 2017). The tween the developer and potentially affected communities Hailong Project undertaken by Yu-shan Energy and NPI (Cass et al., 2010). has signed a Memo of Understanding with the Wangkung 2) Statutory conditions imposed by authorities. Community Oyster Culture Association, a local NGO, promising co- benefit schemes can also be statutory conditions of a de- operation on marine environmental matters, green-energy velopment plan. For example, the winners of Taiwan’s education, and the promotion of community development

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(United Net News, 2018). dissemination of knowledge and improvement of the image of 1-3. Fishing Conflicts the green energy sector, especially in the eyes of the young Because traditional fishing grounds and OWF sites in generation of locals who are potential future employees in this western waters off Taiwan greatly overlap, the fishing industry sector. Even as they inevitably bring about certain changes in could be affected in several ways by the installation of OWF; the commercial fisheries, OWF projects are expected to it is the most vulnerable stakeholder of all. First, the noise of directly generate and support thousands of new employment construction might permanently displace commercial fish opportunities (Lee, 2015). Even after the construction phrase, species from their breeding and feeding grounds. Turbine operations and maintenance of the facilities will represent the construction, cable placement, and barge anchorages may majority of total job-years because such jobs will endure for disturb the sea floor habitat as well, and there are concerns the whole 25-year lifetime of the wind farm. This will rep- about the future impact of the noise and vibration that will be resent a significant increase in the number of opportunities created by running turbines (Shao and Shao, 2016). Secondly, for fisheries workers to obtain stable sources of full-time, because OWF require safety zones and have the right to ex- year-round income. Such an addition of new year-round clude vessels from a certain distance around the turbines, some employment opportunities can be expected to have a positive kinds of commercial fishing, particularly those using gill nets and stabilizing impact on the fishing community, which and bottom trawls, would face new constraints on their per- traditionally represents one the most highly seasonal, re- mitted areas of operation and thus suffer economic losses gional economies in the region (Lee, 2015). (Shao and Shao, 2016). These potential conflicts between 2. Challenges OWF and fishing interests must be reconciled through early and ongoing consultations with the fishing community as To further develop Taiwan’s ample wind resources, the is- regards both compensation for fishing losses and the selection land still needs to tackle a few issues, including environmental of potential OWF sites. Because negotiations between OWF considerations, the threats posed by typhoons and earthquakes, developers and fishermen on compensation for fishing losses and the current limitations of offshore wind generation tech- are usually difficult due to haggling over prices (Ou, 2018), nology. In particular, the social-economic and environmental the Fisheries Agency (2016) has issued a “Standard of Off- impacts of OWF have yet to be considered. Disturbances to shore Wind Power Plant Compensation for Fishery”. Although migrating birds and marine mammals, impacts on and losses to this standard is not compulsory, it has proved to be helpful in the commercial fishing industry, and repercussions for navi- furthering negotiations (Ou, 2018). gation and harbor development need to be predicted and ap- Will offshore wind farms have an impact on the oyster in- preciated, and their remedies planned for, well before any dustry and the “Fangyuan Sea Buffalo” tourism business? At construction takes place. Otherwise, environmental issues will the beginning of this project, we found that the oyster industry hinder progress, especially when environmental groups are seemed unaware of any concerns regarding to the installation already leery of the potential impact of offshore wind turbine of OWF (Lin et al., in prep.), but preliminary indications on the marine environment (Lin et al., in prep.). suggested that water pollution may result from construction 3. Local Environmental Needs and Supply Chain Locali- necessary for connecting power cables to onshore facilities zation (Lin et al., in prep.). The companies involved in OWF devel- opment are, therefore, looking for methods to eliminate or Unlike Western Europe, Taiwan often experiences natural reduce risks caused by the cable landing, for example, by disasters such as earthquakes and typhoons. This means that directing all developers’ power cables along a single path to internationally available technologies are not fully applicable minimize the need for multiple connecting sites in wetlands to, or compliant with, the situation in Taiwan. Companies (Taiwan Environment Information Center, 2019). engaged in OWF development need to cooperate with foreign 1-4. Opportunities for New Businesses firms but at the same time they must develop locally specific The introduction of novel kinds of marine-oriented small technical means of facing environmental challenges in Taiwan. business has been suggested for affected fishing communities Such efforts include research on and the manufacturing of key (Lee, 2015). For example, existing fishing boats, which al- components of wind turbines and their foundations with an- ready offer charter services to sports anglers, might be used to ti-earthquake, anti-typhoon, and anti-corrosion characteristics transport paying tourists out to view OWF facilities (“tur- (Flanders Investment & Trade Office, 2014: 15-16). bine-watching”), with the possible additional benefit of mak- One of the main purposes of the above-mentioned “Demon- ing the turbines more attractive to the public. Other tour- stration Incentive Program” and “Directions of Zone Appli- ist-oriented suggestions include the introduction of diving cation for Planning of OWF” was to stimulate local industrial facilities, with OWF acting as artificial reefs, as well as the development by encouraging wind-farm developers to invest establishment of offshore floating restaurants in the vicinity of in R&D on Taiwan-made turbine components. Another pur- wind farms (Ou, 2018). On land, a wind-farm visitor center pose was to encourage the improvement of local fleets with an may serve as the focus for additional tourist attractions while augmentation of the country’s skills in marine construction, also fulfilling its core educational and motivational purposes: operations, and maintenance. While the developers have had

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to organize consortia or joint-venture companies with foreign tural conservation and local communities themselves, by corporations, they must also submit documentary evidence of generating financing for management of the community cul- their local supply chain to BOE for reviewing by the end of ture. Community tourism of this sort not only encourages 2019 in order to obtain an electricity generating permit (BOE, cross-cultural understanding between hosts and visitors but 2015). This will ensure that local suppliers are connected with also embraces the bottom line of environmental protection, international supply chains and create higher value in the cultural conservation, social responsibility, economic health, finished facilities. For example, the first four demonstration and the enhancement of livelihoods. Community-based tour- units installed by the two private awardees in the “Offshore ism may benefit both the community and tourists as follows Demonstration Incentive Program” will be manufactured (Responsible Travel, 2019): overseas while those installed by the state-run Taiwan Power For the community: Company are meant to have a significant proportion of do- • It brings recognition and attention to the community. mestically-produced components. • It augments the community’s economy while diversify- ing its economic activity. 4. Environmental Disturbance • It provides an alternative to unsustainable forms of in- According to researchers studying how wind turbines affect come resulting from shortages of natural and human re- the environment, OWF will change regional ocean ecosystems sources. in profound and unexpected ways. Most such research stems • It encourages conservation of natural resources, when the from Europe, where offshore turbines have been operating main product is related to wildlife or other natural re- since 1991, but the results can nonetheless help to shape plans sources. for deploying OWF in other parts of the world. In particular, • Tourism income is more likely to remain in the commu- local residents frequently express their concerns about OWF nity. in terms of environment and safety. Environmental protection • It encourages community pride and conservation of the groups and ecological conservationists are concerned about community culture. impacts on marine species such as white dolphins, flight routes • It involves and encourages the participation of commu- for migratory birds, and wetland conservation during OWF nity residents. construction. In Taiwan, the potential and actual impacts of For tourists: OWF on Fangyuan’s environment need detailed, long-term • They receive a real experience and learn first-hand about study. Policies are required to balance the development and the community from local guides. conservation of Fangyuan’s coastal areas because such de- • They have an opportunity to develop a deeper connection velopment will have an impact on the “Fangyuan Sea Buffa- with the destination. los” as a cultural industry and also on the maintenance of a • They know exactly where the money will go and can feel sustainable community (Lin et al., in prep.). good about it. • In the case of ecotourism, they achieve the win-win 5. Offshore Renewables as a Basis for Community-Based benefits of supporting natural heritage conservation. Tourism • They get a unique look at a particular destination. It was suggested above that OWF may provide opportuni- Developing “green life” and “green industry” has become a ties for new kinds of tourism-based maritime business. There promising way to achieve a sustainable civilization in 21st is another way to organize such businesses so as to provide century. In Germany, the annual renewable share of electricity sociological as well as economic benefits. Community-based production reached 40.3% in 2018 (Fraunhofer Institute for tourism is a form of sustainable tourism that allows visitors to Solar Energy System ISE, 2018). One particularly well-known connect closely with the communities they visit. It has been “green” community there, Joined, has successfully imple- promoted as a means of development whereby the social, mented green life and green industry and thereby become a economic, and environmental needs of local communities are tourism attraction (Frantál & Urbánková, 2014). Recently, met through the offering of a tourism product. This emerging energy tourism has developed as a type of industrial tourism form of travel gives tourists genuine experiences, while al- and also as a type of special-interest tourism. Such tours can lowing income generated by tourism to remain in the often serve for both educational and recreational purposes, and rural, poor or economically marginalized community. Com- highlight the possibility of using green energy as a marketing munities run these tourism enterprises, which provide services strategy. Three additional cases of energy tourism, all in the such as village tours, nature walks, history and culture expe- Czech Republic, may be mentioned (Frantál and Urbánková, rience, and local foods on their own initiative. Because 2014): tours of coal mines, the information center at a nuclear communities are the owners of these tourism enterprises, they power plant, and Dragon Kite Festivals held under wind tur- have the incentive to invest in a quality tourism product for bines. Survey results showed, for example, that people who tourists. Community-cultural tourism is a particular facet of visited the nuclear plant site developed a significantly more community-based tourism in which at least some of the expe- positive attitude towards nuclear energy after their visit riences are based on cultural properties. It benefits both cul- (Frantál and Urbánková, 2014). Other examples include en-

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ergy tourism in the Danish islands of Lolland and Falster, oped through such a process will naturally be the most where an offshore wind farm is considered an important touching and powerful. In this process the government can component of the tour (Holm and Højbjerg, 2009), and a study best act as a provider of resources, a coach for the management of tourists’ and local residents’ views of a wind farm marketed of knowledge, an establisher of regulations, and a planner, as a “green tourism” spot near a Portuguese village (de Sousa eventually becoming a beneficiary of the new resources pro- and Kastenholz, 2015). vided by a successful outcome. Public and private collaboration in developing a green-energy cultural-creativity community should be ap- IV. CONCLUSION proached in a holistic way during the planning phase. A new The resistance to the Kuokuang petrochemical industry community model of renewable energy featuring from 2003 to 2011 made Fangyuan famous and brought tour- co-ownership and cooperation could increase the social ac- ists to visit “Fangyuan Sea Buffalos” and the oyster fields (Lin ceptance of installing and implementing of renewable projects, & Hsu, 2017). From this experience, it became clear how a but there will be problems in unifying multiple ownerships for challenge can become an opportunity. The next challenge for such an enterprise, and different patterns of citizen participa- Fangyuan will be the installation of OWF off Changhua tion could affect the outcome of any particular effort to estab- County. Although the installation of OWF may have delete- lish such a community. It has been suggested that inter-agency rious effects on the natural, cultural and industrial environ- integration and support at the regulatory level may be helpful ment of Fangyuan as reviewed above, it could be perceived as in this regard (Seyfang et al., 2013). Many factors are involved an opportunity as well. Positive visions can be developed on the part of both industrial enterprises and governments: collaboratively by engaging both the community and devel- awareness of the unique local culture, promotion of green life opers in discussions and planning. For example, OWF can and green industry through the implementation of green en- provide green energy for local residents and industries while ergy policies, making cooperation and cohesion of diverse also providing a basis for new educational energy tours and local resources possible to bring regional prosperity, advo- DIY courses for students and tourists. Multi-functional wind cating green tourism to preserve cultural properties and de- farms can encourage tourism by, e.g., serving as artificial reefs veloping cultural tourism in order to retain unique cultural that conserve the marine ecosystem, enhance the seascape, and attributes, and finally, assistance in local industrial transfor- provide recreational opportunities. The same could be true for mation and in encouraging youths to return to their hometown. investments in a visitor center that combines green energy If the renewable energy industry and different levels of gov- education and cultural attributes into one segment of the ernment can address all these points, a brighter future for “Fangyuan Sea Buffalo” tour course. The turbines themselves Fangyuan will be at hand. can also be used as measurement and observation platforms to collect meteorological, marine biological, environmental, and ACKNOWLEDGEMENTS bird-migration data for future research. Public and private collaboration in community develop- The authors thank all the stakeholders and collaborators ment is not an easy process, especially when it involves a who took part in forums, workshops, and surveys for their time manufactory industry with issues drawn from economics, and contribution. The research was conducted with funding environmental protection, the socio-cultural sphere, natural from the Ministry of Science and Technology (MOST). Spe- science, and politics. Often, lack of trust between citizens and cial thanks also go to Dr. Mark J. Grygier of National Taiwan governments or industrial companies is the fundamental issue Ocean University for reading the English and improving this of dispute. From our analysis of how Fangyuan developed a manuscript. new form of cultural tourism from its traditional marine cul- ture, we learned ways to manage the issues of cultural property REFERENCES and industry and to improve the prospects for development of a sustainable community. This case provides a prototype for Aitken, M., C. C. Haggett and D. P. Rudolph (2014). Wind Farms Community constructing a public-private collaborative vision of green Engagement Good Practice Review. University of Edinburgh, Edinburgh, UK. energy and cultural industry. On the one hand, local people Bureau of Energy (2015). Directions of Zone Application for Planning of know what the community needs, while on the other, they also OWF. Available: https://www.moeaboe.gov.tw/ecw/populace/Law/ face the greatest impact of whatever the policy implementa- Content.aspx?menu_id=2870 (in Chinese). tion calls forth. Fangyuan’s development of cultural tourism is Bureau of Energy (2018a). 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